Statement by Senator Kerry O’Brien, Parliamentary Adviser to the Australian delegation to the United Nations, on behalf of Canada, Australia and New Zealand, to the Fourth Committee on the Comprehensive review of the whole question of peacekeeping operations in all their aspects
24 October 2008
(As distributed)
Mr Chairman,
I have the honour to deliver this statement on behalf of the CANZ group of countries – Canada, Australia and New Zealand.
At the outset, I would like to welcome the new Under-Secretary-General for the Department of Peacekeeping Operations (DPKO), Mr Alain Le Roy, the new Under-Secretary-General for the Department of Field Support (DFS), Ms Susana Malcorra, and the new DPKO Military Adviser, Lieutenant General Chikadibia Obiakor. I would also like to thank Mr Le Roy and Ms Malcorra for their presentations.
We wish the new leadership team well as they take up the helm of UN peacekeeping, and hope to see strong and coordinated leadership across the whole UN peacekeeping group. We would like to reiterate that the countries of CANZ stand ready to support you in the challenging and extremely important tasks ahead.
Mr Chairman,
The change in leadership of the peacekeeping group presents an opportunity to take stock of where UN peacekeeping is today - its successes and its challenges. It is appropriate for us all to take a fresh look at what UN peacekeeping can achieve and how best to use this critical tool of international peace and security.
The surge in the demand for UN peacekeeping witnessed in the late 1990s and early into the new century has not abated. There continues to be an increasing demand for the deployment of UN missions in new and challenging situations. This is both a testament to the value of UN peacekeeping and a consequence of wider geopolitical security issues.
The international community must respond to calls for increased UN peacekeeping, however, it is important that this is done with practicality and mindful of advice being provided by the Secretariat. When considering the future of UN peacekeeping, it is appropriate to return to the Brahimi report and the lessons learned from a challenging period of UN peacekeeping history. One of the key lessons identified in that report is the need for ‘clear and achievable mandates with resources to match’. It is important that the mandate of a UN peace operation does not create expectations that are not able to be met. The international community must be realistic about what is achievable within the resources we are willing or able to provide.
Mr Chairman,
In respect of these issues, CANZ has particular concerns regarding the progress of UNAMID. The Secretariat has been working hard to stand up this complex and challenging mission, and we pay tribute to the military, police and civilian personnel currently on the ground doing their best to make sure the mission succeeds. However, it has been a challenge for the UN and the international community to mobilise the resources needed for UNAMID’s ambitious mandate. It has been a long and painful process and much clearly remains to be done, however we commend the Secretariat for its persistence in moving towards getting a stronger force on the ground.
Despite some welcome changes, there is still insufficient cooperation on the part of the host Government and numerous bureaucratic, logistical, and operational problems persist. The process for obtaining visas remains a significant problem and DPKO should insist on SOFA compliance. The Secretariat and the host Government must work better together to ensure that UNAMID is able to fully and effectively deliver on its mandate.
The challenges being faced by UNAMID must be kept in mind when considering the deployment of new UN peace operations. Any future UN peace operation is likely to be large, complex and resource intensive. We recognise the demand for UN peacekeeping, but caution against the international community, through the UN, raising expectations it cannot meet.
Mr Chairman,
Moving now to management issues; in 2007, the General Assembly approved a substantial restructure and strengthening of the UN peacekeeping group. We note with appreciation that much of the restructure has been implemented. The Integrated Operational Teams (IOTs) constituted a central feature of the restructuring proposal. Although we appreciate the delays in implementing this initiative we are concerned that the IOTs are not performing the role envisaged. We look forward to the development and implementation of practical solutions to ensure the effective operation of the IOTs as soon as possible. Such solutions will require the full support of DPKO and DFS senior management.
Another innovation of the 2007 restructure was the creation of the Office of Rule of Law and Security Institutions. The civilian functions of UN peace operations have, over the past few years, become increasingly important and we look forward to a briefing on how this Office, and each of its constituent parts, is progressing. In particular, we are interested to hear whether the placement of the Police Division within the Office is working well and what the outcomes of the current Police Division review may be. We appreciate the growing role and vital importance of police in peacekeeping operations and recognize that the Police Division may be under-resourced to fulfill its tasks.
CANZ would like to reiterate the request made by the General Assembly that the restructure update report, scheduled for release early next year, be made available to the Membership prior to the 2009 session of the Special Committee on Peacekeeping Operations (C-34).
Building upon the 2007 restructure, the General Assembly this year agreed to further strengthen the Office of Military Affairs (OMA). CANZ urges DPKO to recruit experienced and competent staff to fill the additional posts as quickly as possible. One of the elements of the strengthening proposal was the assessed need for a rapidly deployable military headquarters start-up capacity. We look forward to receiving a progress report on the OMA strengthening, and would appreciate an update on the Secretariat’s thinking regarding whether the need remains for an additional rapidly deployable headquarters capacity.
One issue highlighted in the OMA proposal was the need for a military strategic assessment capacity within DPKO. As UN peace operations have become more complex, and UN peacekeepers are deployed into higher threat environments, the need for timely and accurate strategic analysis has become pressing. We look forward to the operationalisation of this capacity within OMA and we encourage DPKO to develop strategic assessment capabilities within the existing information analysis teams.
Mr Chairman,
As UN peace operations have become more integrated and multidimensional, the need for comprehensive, early and integrated planning has increased. While the UN Integrated Mission Planning Process (IMPP) was used for the first time in planning for UNAMID, we understand that the process remains complex and is not wholly embraced across the UN peacekeeping group. CANZ suggests that the Secretary-General might consider appointing a ‘champion’ for the IMPP within the Secretariat, to ensure that the process is accessible, inclusive and widely used.
The integration being striven for in the peacekeeping group at headquarters needs to be reflected in the field. Our experience indicates that the level of coherence and coordination in the field differs greatly from mission to mission. We stress the need for greater coherence across mission components and with the country team in all UN missions. At the same time, we recognise the importance of maintaining a distinction between humanitarian and military purposes and actors. We call upon the leadership of the peacekeeping group to promote greater coherence within missions and greater coordination between peacekeeping, political and humanitarian actors.
Mr Chairman,
At its 2008 substantive session, the C-34 recognised the need for clear and appropriate guidelines for peacekeeping missions, so that they are able to carry out all their mandated tasks. CANZ welcomed the publication of the Capstone Doctrine earlier this year, and looks forward to the development of much needed subordinate doctrine and guidance. DPKO doctrine is an essential tool to ensure that all Member States share a common understanding of UN field mission operational and management issues. This shared understanding is crucial to facilitating smooth, safe and efficient operations. We consider the development of clear doctrine and guidance a priority. CANZ would appreciate a briefing from the Secretariat on progress made in developing the suite of guidance for UN peace operations, in line with the Peace Operations 2010 reform agenda.
The protection of civilians is mandated in eight UN peace operations and is one of the primary tasks of UNAMID. CANZ maintains its concern that military and police personnel deployed to carry out these tasks do not always have appropriate guidance to effectively implement protection mandates. Given the importance of this task, we request DPKO to develop doctrine and guidance for the protection of civilians in UN peacekeeping operations, as a matter of priority.
Noting the increasing demand for formed police units (FPUs), we welcome the anticipated engagement with Member States in the development of FPU doctrine. This guidance should provide greater clarity to Member States and to missions regarding FPU roles and functions.
In addition to the work on peacekeeping doctrine, we support the on-going discussion of a UN wide policy on security system reform, as reflected in the Secretary-General’s report "Security, peace and development: the role of the United Nations in supporting security sector reform", and encourage the coordination of this concept within the discussions on peacekeeping policy. To be successful in peacekeeping, post conflict stabilisation, and development, it is essential that international support for reform of security institutions and mechanisms be based on principles of local ownership, democratic civilian control and whole-of-system integration.
Mr Chairman,
The increasing complexity of UN peacekeeping and the deployment of peacekeepers into high threat environments have highlighted the need for the UN to make the best possible use of advanced technology, particularly in the areas of communications and surveillance. CANZ would like to see DPKO embrace the opportunities to provide a safer environment for our peacekeepers through the use of advanced capabilities such as UAVs. We look forward to receiving from the Secretariat an update report on progress being made in this area.
CANZ, along with the rest of the peacekeeping community, is deeply saddened by the fatalities of peacekeepers. UN peace operations must have the mandate and the capacity to defend UN personnel and facilities, and the Secretariat must have the analysis, early-warning and crisis capacity to avoid and manage such situations. We continue to urge the implementation of appropriate security arrangements for individual police and military experts on mission and look forward to an update from the Secretariat on what steps have been taken to address this. We seek assurance from the Secretariat that comprehensive efforts are being made to ensure the safety and security of all UN personnel.
On another operational issue, CANZ has concerns regarding the direction of rotary winged aircraft in missions. The present practice of putting both contracted civilian helicopters and tactical military helicopters under the control of the Director of Mission Support has proven to be detrimental to the effective conduct of operations and puts peacekeepers at unnecessary risk. We appreciate the difficulties faced generating required capacity and harmonising operational procedures. However, we urge the Secretariat to review this policy, and to ensure that military helicopters assigned to UN missions come under the operational command and control of the Force Commander.
Mr Chairman,
CANZ remains concerned that while there has been significant progress in countering and dealing with acts of serious misconduct, the problem of sexual exploitation and abuse continues. We call upon all Member States participating in UN operations to adhere rigorously the Secretary-General’s zero-tolerance policy, to discipline those who transgress the norms of conduct and to insist on maintaining the highest standards of behaviour. We also call on the international community to support implementation of the Strategy on Assistance and Support to Victims of Sexual Exploitation and Abuse by UN and Related Personnel.
Finally, a word on training. We understand that the DPKO Integrated Training Service (ITS) has been undergoing a consolidation period and has developed a strategy for the delivery of training to UN peacekeepers. Now that the strategy has been developed, we would like to see its implementation and the development and delivery of training product as soon as possible. We were disappointed to learn that UNITAR will no longer be delivering the Program of Correspondence Instruction (POCI) peacekeeping courses that were so heavily utilised by the peacekeeping community, particularly in Africa and Latin America, and which were unanimously supported in the C-34. We would like to receive a briefing on the work of ITS, UNITAR and any other parts of the UN system involved in peacekeeping training, prior to the 2009 session of the C-34. We request that this briefing include information on how continuity is being ensured for students who were enrolled in the POCI programs, and how the past and ongoing work of the POCI will be included in the UN peacekeeping training framework.
Mr Chairman,
This year, the international community observed the 60th anniversary of UN peacekeeping. The evolution since the early days of traditional ceasefire monitoring missions has been dramatic.
UN peacekeeping is a unique and dynamic tool. It carries with it the legitimacy derived from the entire UN membership. It is our common tool, shared by every Member State. It is also at a critical point in its development, and it is essential that the international community uses this tool wisely. UN peacekeeping may not be appropriate for all circumstances and we must be mindful that its achievements will be constrained by the limits put on it by the international community.
The countries of CANZ have been strong supporters of UN peacekeeping since its inception. We have always been actively engaged, both during its successes and its difficult days. We stand ready to work with our fellow Member States and the Secretariat to ensure that UN peacekeeping, our shared tool, continues to play a positive and vital role in international peace and security.